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UNITED STATES BUREAU OF EDUCATION 

BULLETIN, I9I5.NO. 28 - WHOLE NUMBER 655 



THE EXTENSION OF PUBLIC EDUCATION 

A STUDY IN THE WIDER USE OF 
SCHOOL BUILDINGS 



By CLARENCE ARTHUR PERRY 

RUSSELL SAGE FOUNDATION 




WASHINGTON 

GOVERNMENT PRINTING OFFICE 

1915 



UNITED STATES BUREAU OF EDUCATION 

BULLETIN, 1915, NO. 28 ...... WHOLE NUMBER 655 



THE EXTENSION OF PUBLIC EDUCATION 

A STUDY IN THE WIDER USE OF 
SCHOOL BUILDINGS 



By CLARENCE ARTHUR PERRY 

RUSSELL SAGE FOUNDATION 




WASHINGTON 

GOVERNMENT PRINTING OFFICE 

1915 



Monograph 






ADDITIONAL COPIES 

OF THIS PUBLICATION MAY BE PROCURED FROM 

THE SUPERINTENDENT OF DOCUMENTS 

GOVERNMENT PRINTING OFFICE 

WASHINGTON, D. C. 

AT 

20 CENTS PEE, COPY 



:? 24 :gt5 






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CONTENTS 



Page. 

Letter of transmittal. 5 

What it is that is being extended 7 

The extent of the extension movement 11 

Table 1. — Cities of 5,000 population and over which reported extension activities 

for the school year ending June 30, 1914 13 

The magnitude of local undertakings 29 

Table 2. — Schools in 53 cities which reported evening activities of a certain 

frequency, other than night schools, during February, March, and April, 1914. 31 
Table 3. — Rooms used per evening in 11 cities during February, March, and 

April, 1914 41 

Table 4. — Number and character of evening occasions (other than regular night- 
school classes) in selected schools of 45 cities during March, 1914 43 

Lines of activity compared as to volume ' 46 

Extension activities before 6 p. m 51 

Letting regulations 52 

Types of school extension administration 56 

Cooperation in control and support through neighborhood organization 58 

Adaptation of buildings for extended use 60 

Conclusion 61 

Appendix 65 

3 



LIST OF ILLUSTRATIONS. 



Plate 1. A, An east Boston musical club; B, The drum corps satisfies a 

strong instinct 8 

2. A, A girls' dramatic club presenting "Tom Pinch"; B, Novelty 

sewing and Irish crochet club 8 

3. A, A folk-dancing club in the Roxbury High School assembly room; 

B, A good times club in east Boston 8 

4. A, A basketry club at home in a school corridor; B, Choral class in 

Louisville 8 

5. A, The Louisville housekeepers' conference celebrating; B, An 

unused schoolroom which became an attractive library station 48 

6. A, Social center groups holding a play festival; B, A little mothers' 

club learning the mysteries of baby's bath 48 

7. A, A Milwaukee pool room that is not attached to a saloon; B, An 

Italian band that was helped by the privilege of practicing in a 
classroom 48 

8. A, Dancing among friends at one of the New York recreation centers; 

B, Physical culture without fees 48 

9. A, Preparing the school work in a studious environment; B, A check- 

ers tournament 56 

10. A, Balloting for the officers of a New York community center 

organization; B, A neighborhood commission which governs the 
center at P. S. 41, Manhattan, New York City 56 

11. A, A Hungarian dance in a "Pageant of All Nations"; B, The 

mothers of a neighborhood getting together 56 

Figure 1. Regularity of extension activities 42 

2. Lines of activity compared as to number of persons benefited 48 

4 



LETTER OF TRANSMITTAL. 



Department of the Interior, 

Bureau of Education, 

Washington, June 4, 1915. 

Sir: Until within the last few years public schoolhouses in Amer- 
ican cities and towns were open only for the regular school work and 
for children of legal school age. For this purpose they were open only 
from 5 to 7 hours a day for from 150 to 190 days in the year, a total 
of not more than 1 ,400 hours a year, and were closed to all use through 
the remainder of the 8,760 hours of the year. Public school funds 
were used only for the regular school work. Only occasionally 
evening classes for older boys and girls and for men and women were 
found, and sometimes schoolrooms were used for public debates and 
for meetings of literary societies composed chiefly of older boys and 
girls of the school. Except for the very few who went to college, 
education was supposed to stop with childhood and the total or par- 
tial completion of the prescribed work of the elementary schools, or, 
at most, with the years of early adolescence and the work of the 
high school. The public schools had no further concern for them. 
But since the beginning of the present century there has been a grow- 
ing interest in public school extension and for a fuller use of the pub- 
lic school plant. In most cities and large towns schoolhouses are 
now used for night schools, both for older boys and girls and for 
adults, for meetings of civic societies, for entertainments, for meet- 
ings of parent- teacher associations, and other similar educative pur- 
poses, and it is not uncommon for public school funds to be used 
directly or indirectly for the promotion of these larger and less 
organized forms of education. To meet the demand for some intelli- 
gent account of the nature and progress of this movement for the 
extension of public education and the wider use of school buildings, 
I recommend that the manuscript transmitted herewith be published 
as a bulletin of the Bureau of Education. It was prepared at my 
request by Mr. Clarence Arthur Perry, of the Russell Sage Founda- 
tion, through the cooperation of that Foundation and this Bureau. 

Respectfully submitted. 

P. P. Claxton, 

Commissioner. 
The Secretary of the Interior. 



THE EXTENSION OF PUBLIC EDUCATION. 



WHAT IT IS THAT IS BEING EXTENDED. 

During the fall of 1912 a bitter political contest was waged in 
Jersey City. The decisive rally, tense and surcharged with partisan 
feeling, at which public sentiment was finally captured by one of the 
striving factions, was held in the city high school. Having in mind the 
violent possibilities natural to a political mass meeting, the educa- 
tion authorities took precautions. Through the newspapers the 
public was instructed regarding the hour of opening the doors and 
the particular entrances to be used in entering and leaving the build- 
ing, and it was informed of the ban upon smoking. Citizens were 
also requested to cooperate with the police in maintaining order in 
and around the school premises. The orderliness that resulted was 
remarkable, considering the occasion. The audience, which included 
many ladies, showed no disposition to smoke during the proceedings, 
and only a few had to be cautioned about it at the doors. " In fact," 
reported Supt. of Schools Henry Snyder, "the prevalent good order 
was the cause for much favorable comment." Thus the matter of 
talking over the affairs of government and of selecting public servants, 
a business that is often transacted amidst sordid surroundings and 
but feebly participated in by large and important elements of the 
population, was dignified and made more widely representative 
through coming under the shelter of the public-school system. In 
this incident we see an illustration of a community activity being 
modified by public school control. 

There is a tendency to overlook the precise nature of the process 
known as public education. It is a common habit to think of the 
activities which go on in the classroom as in some essential way dif- 
ferent from those which go on in the parlor, the office, and the shop. 
The imposing and intricate machinery of modern education makes 
it easy to lose sight of the fact that nothing is done within the school 
that is not done outside of the school. Children learned to under- 
stand graphic signs and to count things by means of symbols long 
before schools existed. In the tribal period, history and poetry were 
imparted to the young through the camp-fire recitals of the elders. 
To-day boys and girls begin to pick up the three R's and to acquire 
something of local geography before they enter a classroom. Many 
boys use saws and hammers before they get into the manual training 
shop, and most girls do something with dishes before they enter the 
domestic science room. With everybody, learning begins before the 

7 



8 THE EXTENSION OF PUBLIC EDUCATION. 

school days and continues after they have passed, and even during 
them it goes on outside of the classroom as much perhaps as within it. 

The distinctive work of the school is to make certain common 
activities go better than they ordinarily do apart from it. Essen- 
tially, it is an improving, elevating, ameliorative function that the 
school has always attempted to perform, and must from its very 
nature always strive to perform in the future. It may not always 
enrich the character of the activity it takes over, but it always insists 
upon its conformity to a certain manner. Its efficacy in imposing 
upon human conduct a desired mold was first appreciated, naturally 
enough, by the church, an institution which has supported it from 
the earliest times and by which it will probably always be regarded 
as a necessary instrument. With the development of democracy 
and the increasing participation of the common people in the affairs 
of government, concern was felt as to the wisdom and intelligence 
which the masses would display in the exercise of suffrage. This 
anxiety arose from the belief that the intellectual training of the 
rising generation, which was then being given largely in the home, 
and only to a limited degree by the church and private agencies, 
was not sufficiently even, systematic, and efficient to insure the ade- 
quate education of all the future citizens. Education was indeed 
going on in one way or another everywhere, but it was not uniformly 
good enough. And so the public school was instituted to better 
generally the rudimentary instruction then in existence. 

Bettering, in the sense intended here, does not mean that the public 
school, upon assuming the burden of teaching the three R's, immedi- 
ately improved the quality of that process as carried on in exception- 
ally favored homes or private schools. What is meant is that, 
through the transfer, in the main, of this instruction from careless, 
untutored, and unsystematic parents to persons specially prepared 
for and devoting regular periods to teaching, the learning of the three 
R's was greatly facilitated for the multitudes of boys and girls who 
had hitherto enjoyed no particular educational advantages. By 
improving the instruction of a large part of the children, the public 
school bettered the hulk of the elementary instruction for all. Other 
activities which have been unevenly and inadequately performed by 
the home are being continually taken over by the public school with 
the same kind of ameliorative result. 

Let us take one other example. Parents, as a rule, have always 
cared in some way for the bodies of their children. Their solicitude 
may have resulted in little more than trimming the hair or providing 
clothes; it may have taken the absurd Chinese form of binding the 
feet, but it has seldom been absent altogether. On the other hand, 
few fathers, even to-day, have in practice attained to the height of 
their obligation in this matter; that is to say, few parents are sys- 



BUREAU OF EDUCATION 






BULLETIN, 1915, NO. 28 PLATE 1 




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4. AN EAST BOSTON MUSICAL CLUB. 
The privilege of belonging to a mandolin club need not be limited to college students. 




B. THE DRUM CORPS SATISFIES A STRONG INSTINCT. 



BUREAU OF EDUCATION 



SULLETIN, 1915, NO. 28 PLATE 2 




A. A GIRLS' DRAMATIC CLUB PRESENTING "TOM PINCH." 




B. NOVELTY SEWING AND IRISH CROCHET CLUB— BOSTON EVENING CENTERS. 



BUREAU OF EDUCATION 




BULLETS 


J, 1915, NO. 28 PLATE 3 


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.1. A FOLK-DANCING CLUB IN THE ROXBURY HIGH SCHOOL ASSEMBLY ROOM. 




B. A GOOD-TIMES CLUB IN EAST BOSTON. 



5UREAU OF EDUCATION 



BULLETIN, 1915, NO. 28 PLATE 4 




A. A BASKETRY CLUB AT HOME IN A SCHOOL CORRIDOR. 



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These boys were "problems " at the center until music was tried. 



WHAT IT IS THAT IS BEING EXTENDED. 9 

tematically having their growing sons and daughters professionally 
examined for bodily imperfections, defects of the teeth, the throat, 
and the sense organs, thus making possible the initiation of correc- 
tive measures while they are still feasible. By making medical in- 
spection a school duty, the discharge of this family obligation is 
being raised to a higher level of thoroughness and efficiency; for the 
mass, of the children the performance of this function is being vastly 
improved through its assumption by the public school. To take a 
common but vital human activity that may be well performed by the 
few, but is carried on imperfectly by the many, and lift it universally 
to a higher plane — this is the essential function of public education. 

Since public education introduces no new activities, but deals 
always and only with those which are common to the life outside of 
the school, the improvements it effects are necessarily improvements 
in manner. Its achievement is that the activity it takes over goes 
on in a better, more uniform way than it ordinarily does when left 
to itself. In other words, public education always changes human 
conduct, and if it were not for the fact that we are accustomed to 
associate moral with deliberate wrong-doing and not with careless or 
unenlightened actions, it would be the right name to give to the 
specific work of the public school. That a close kinship exists 
between morality and the essential nature of public education is 
obvious. This relationship is interestingly unveiled when we go back 
of the earliest beginnings of public education and penetrate the con- 
siderations which drove our forefathers to take the first concrete 
steps toward the establishment of free schools. Their mental work- 
ings are clearly revealed in an old Boston school law of 1642, wherein 
it is set forth that selectmen are required to "have a vigilant eye 
over their brethren and neighbors; to see that none of them shall 
suffer so much barbarism in any of their families as not to endeavor 
to teach their children and apprentices so much learning as may 
enable them perfectly to read the English tongue and obtain a 
knowledge of the capital laws." Motives of a more palpably moral 
character it would be difficult to discover behind any other under- 
taking that was not connected with the church. 

If further evidence were needed to substantiate the claim that this 
improving function constitutes the essence and core of public educa- 
tion, the permanency of this characteristic would afford it. In the 
early days the public school was exclusively devoted to the intellec- 
tual and the academic. Now the handling of the saw and the tooth- 
brush drill are taking their places alongside of parsing and ciphering. 
Once society felt an educational duty toward children only; now 
through its State and city colleges it is taking in adults. No matter, 
however, what changes occur in the field or range of public education, 
its bettering, uplifting character persists unchanged. 



10 THE EXTENSION OF PUBLIC EDUCATION. 

At bottom self-preservation was the motive that brought the public 
school into existence, and it has now served that purpose so long that 
it is inconceivable that society would ever allow it to be used for 
destructive purposes. Furthermore, through being forced to com- 
bine their means in the employment of skilled persons to teach their 
children the three R's, people have learned that they can use the same 
method in obtaining for their offspring and for themselves oppor- 
tunities for self-realization and happiness which individually they 
could not afford. So that not only the circumstances of the public 
school's origin, but society's innermost, selfish interests, bind it to the 
continuance, throughout all future time, of its present distinctive 
function. 

The teaching staff and other machinery of the school being thus 
unalterably dedicated to a betterment service it follows that society 
will not permit the buildings which were erected solely for the same 
purpose to be put to any sort of contrary or deteriorating use. In 
the public mind the schoolhouse is so closely associated, with whole- 
someness that an antisocial event happening in it, either during or 
after the regular classes, is immediately resented. If it occurs in the 
schoolhouse, it is a public matter; if it does not come up to local 
standards of propriety, criticism is certain and prompt. 

The statistics about to be presented show that new and varied 
activities have come within the environment and under the control 
of public education. Viewed as figures, or as so many congregations 
of human beings, they have little meaning. When regarded as evi- 
dence of an increase in the range and power of the most effective 
instrumentality for the improvement of mankind that society has 
ever contrived, they have an enormous significance. Do they show 
that lectures are held in the schools ? It means that new canals have 
been dug to facilitate commerce in the world's stores of knowledge. 
Do they reveal parent-teacher gatherings in classrooms ? Society is 
getting team-work between the home and the school. Political ral- 
lies and voting? The seat of democracy is being transferred from 
the back hall and the barber shop to more suitable quarters. The 
games of boys and girls ? Childhood is beginning to receive intelli- 
gent consideration. Youths and maidens consorting in school halls 
and gymnasiums? Instincts of racial importance are being cher- 
ished instead of exploited. In general, it may be said that the fig- 
ures to follow roughly profile a vast ground swell of social effort; they 
measure the sweep of a deliberate, cooperative reaching-out for a 
finer and richer human life. 

The two corollaries of school extension need no further amplifica- 
tion: 

(1) Every work of improvement accomplished through the public 
school is educational. 



EXTENT OF THE EXTENSION MOVEMENT. 11 

(2) The activities now embraced under public education may be 
added to or replaced by new ones, but no such change can alter its 
essential nature, which is improvement. 

THE EXTENT OF THE EXTENSION MOVEMENT. 

It is a matter of common observation that school properties through- 
out the country are being increasingly used outside of the regular 
class hours, but how many cities are thus utilizing their schools, how 
many schools in each of these cities have the wider use, how continu- 
ous it is and what it consists of in these various schools — upon these 
points no accurate information has been available. To assemble such 
information as could be obtained upon these points was the object of 
this inquiry. The difficulties of the task were two-fold: (a) A vast 
number of miscellaneous after-school occasions take place of which 
no systematic records are kept, and (b) in cities where the after-class 
use has been more or less systematized the records of one system are 
not comparable with those of any other. While these obstacles have 
not been entirely overcome, it has been possible nevertheless to bring 
together certain data which do increase our knowledge of the extent 
of "wider use." 

The Bureau of Education annually puts certain questions to the 
public school officials of the country. Upon the city schools ques- 
tionnaire devoted to "Statistics other than fiscal (Part I)" appears 
the inquiry (No. 18), "Name any special activities connected with the 
school system, as lectures, playgrounds, social centers, etc." The 
answers made to that question for the school year ending in June, 
1914, have been tabulated by the Statistical Division of the Bureau 
of Education and are set forth in Table 1. A preliminary examina- 
tion of the table in the light of information regarding local extension 
activities already at hand in the correspondence of the bureau and the 
files of the department of recreation of the Russell Sage Foundation 
showed that many cities which could have answered question 18 
affirmatively had failed to do so at all. Since the information on 
hand consisted of written or printed reports from the local school 
authorities themselves, it was felt that, in the interest of greater com- 
pleteness, it would be justifiable to attempt to answer, as far as the 
facts known to us permitted, for the cities which had not answered 
for themselves. This was accordingly done, and the cities for which 
replies have been gratuitously furnished are shown in the table. 
While the interpolated answer may not disclose all of the city's exten- 
sion work, it is authentic as far as it goes. But the cities for which 
this had to be done are so numerous (they number 86, or about 14 
per cent of all in the table) as to arouse the suspicion that other 
municipalities, not represented in our supplementary reports, and yet 
actually engaged in extension activities, are omitted from the list 
through failure to answer this inquiry. The omission of a city, there- 



12 THE EXTENSION OE PUBLIC EDUCATION. 

fore, is not good evidence that that city is not doing any extension 
work, and, however widespread the table may show the after-class 
activities to be, it must always be regarded as an understatement of 
the actual facts. 

It will be observed that all of the States, including the District of 
Columbia, are represented in the table except Delaware. In no one 
section of the country is school extension strikingly more prevalent 
than it is in other parts. In its superficial aspects at least the move- 
ment seems to have spread evenly over the whole country. The 
infinite variety of its manifestations is indicated by the variations in 
the replies in the several columns and particularly by the fullness of 
the references to miscellaneous activities. The total number of 
entries under the several heads are as follows: 

Summary of cities and activities reported in Table 1. 

Cities. 

Total number of cities reporting 603 

Cities reporting — 

Playgrounds 345 

Miscellaneous activities 294 

Lectures 289 

Parent- teacher associations 207 

Social centers 129 

Vacation schools 39 

As a country-wide inventory of these activities this statement 
suffers from sources of incompleteness mentioned above and also 
from the fact that only three of the items (lectures, playgrounds, 
and social centers) were named in the circulated question. Many 
superintendents doubtless were not accustomed to think of their 
parent-teacher associations and vacation schools as "special activi- 
ties" of their systems and consequently did not report them. 

"Social center" is generally understood to indicate a rather elabo- 
rate and intensive after-school development, but the replies of the 
school officials show that the term is actually applied to under- 
takings differing greatly as to amount and character of work. One 
city, for example, reported social centers when it appeared from 
other information furnished that during one month the extension 
activities comprised only one lecture, and during a later month only 
three meetings of an adult society. Another city reported social 
centers when, according to its own statement, its school extension 
work other than the regular night school was all carried on in a high 
school which is open evenings on an average of about four times a 
month. Other instances of undertakings similarly slight and spo- 
radic bearing this dignified label could also be cited. Until, there- 
fore, the enterprises going by this name have become more definitely 
standardized, it will not be very useful as an index to the character 
or amount of activity in a particular school extension development. 



EXTENT OF THE EXTENSION MOVEMENT. 



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MAGNITUDE OF LOCAL UNDERTAKINGS. 29 

The lilies of work mentioned in the foregoing summary include 
practically all the main activities now going on within school premises 
outside of the regular day classes except the organized evening in- 
struction. Inquiries 22 and 23 of the aforementioned questionnaire 
concerned public evening schools. The replies for 1914 have been 
tabulated by the Statistical Division, and the summaries show that such 
schools were reported by 297 cities of 10,000 population and over, an 
increase of 44 per cent as compared with the number reported for 
1912. The total number of pupils enrolled was 605,475, and they were 
taught by 14,451 teachers. Among the cities between 5,000 and 
10,000 population there were 84 which reported evening schools dur- 
ing 1914, their enrollment being 8,593 pupils. So that for this year 
the total number of cities (above 5,000) reporting this form of wider 
use was 381, and the benefits of the evening instruction were enjoyed 
by 614,068 individuals. These figures, combined with the summary 
of Table 1, afford us the only available data regarding the present 
sweep of the school extension movement. Because of the conditions 
under which they were gathered, they can not, however, be taken to 
indicate its depth or volume; to gain knowledge upon these points 
some vertical soundings have been made, the results of which are 
set forth in the next section. 

THE MAGNITUDE OF LOCAL UNDERTAKINGS. 

How much extension work is done in individual cities, how many 
evenings a week schools are open, how many rooms are used, and 
what classes of activity go on in them, indicate the kinds of infor- 
mation which were sought under this head. Such data, if compar- 
able, woidd increase our knowledge of the relative intensity of the 
work in various localities. For these purposes a blank form 1 known 
as the " Evening Use Record" was devised and printed by the Bureau 
of Education. Each card contained spaces requisite for a record of 
all occasions after 6 p. m. in one school for one month. A supply 
sufficient for a complete record of all such occasions in a city during 
the months of February, March, and April, 1914, was offered to 
school officials in all the cities of 5,000 population and over. Super- 
intendents to the number of 234 applied for these cards, and 110 
sent in fillcd-out cards. 

Upon assembling the returns, it was found that they included 
many cards which showed only two or three evening events during a 
month. Evening occasions of a similar frequency result spontane- 
ously in many schools, especially high schools, without the stimulus of 
a deliberate wider-use motive. Since it was the purpose of the inquiry 
to gauge, if possible, the accomplishments chargeable to conscious 

1 For the form of this card, instructions, and letter of transmittal, see Appendix. 



30 THE EXTENSION OF PUBLIC EDUCATION. 

school-extension efforts, it was necessary to set a standard of use 
which, it might fairly be assumed, was just above the maximum 
attainable in any enterprising school which had not yet felt the im- 
pulse toward wider use. Without some such standard the tabula- 
tions would be without significance. All cards, therefore, which did 
not show two or more classes of activity occurring once a week or 
oftener, or one activity twice a week or oftener, were excluded. It 
was necessary to throw out also cards which showed activities taper- 
ing off or coming to an end during the month, since in such cases the 
tabulator could not be sure that the partial data gave a true descrip- 
tion of the activity in its normal course. Since the omission of a card 
meant the omission of a school it has resulted in unavoidable unfair- 
ness to the cities affected. But as a matter of fact this inquiry 
can not be expected to afford a basis for a fair comparison of the 
total amount of extension work in the various cities named. Such 
a comparison would have to include the lengths of the seasons when 
schools were open evenings, and that information is not available. 
The findings presented in Table 2 are rather such as would be obtained 
by sinking a vertical shaft, two or three months wide, through the 
evening activities of 53 cities, toward the end of the season. They 
show the thickness and the character of the veins, but reveal no 
facts regarding their horizontal dimensions. 

In Table 2 we have the results of an attempt to lay the same pattern 
upon the extension activities of 296 schools. Such a method brings 
out differences quite as clearly as agreements. Differences in admin- 
istrative control are revealed by the fact that reports covering three 
months were asked for, but in the case of only 100 schools were data 
for the whole period furnished, and only a few cities were able to 
obtain from their several schools reports for the same length of time. 
The amount of use which schools are given after 6 p. m. shows little 
uniformity among either the cities or the schools of any given city. 
The average number of rooms used an evening usually includes a 
fraction showing that there is little sameness in respect to the amount 
of space occupied from evening to evening. 

Slightly over one-half of the schools listed used two or fewer rooms 
per evening; the average for the bulk of the remainder ranged between 
three and nine rooms per evening, the highest number (19.8) being 
reported for public school 188, Manhattan, New York City. The 
averages for 11 of the larger cities are shown in Table 3. Since these 
figures show only the average amount of space taken up by the activi- 
ties of a single evening and throw no light upon the number of even- 
ings in the season when the buildings are open, it must be repeated 
that they can not be regarded as comparisons of the volume of the 
extension work in the cities named. 



MAGNITUDE OF LOCAL UNDERTAKINGS. 



31 



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MAGNITUDE OP LOCAL UNDERTAKINGS. 41 

Table 3. — Rooms used per evening in 11 cities during February, March, and April, 1914. 



Cities. 


Schools 

reported 

upon. 


Rooms 
used per 
evening. 


Chicago ; 111 


18 

6 
10 
10 

4 
14 

8 

i 128 

18 

11 

5 


6.5 
1.7 
1.8 
2.3 
3.6 
4.3 
1.6 
4.5 
4.7 
2.9 
1.3 




Grand Rapids, Mich 








New York, N. Y 






St. Louis, Mo 



1 This figure includes schools used by the departments of public lectures, evening schools (only their 
recreational and social activities being included in the table), and evening recreation centers. In some of 
the buildings more than one of these departments operated at the same time. The average number of 
rooms utilized in 30 schools exclusively assigned as evening recreation centers was 6.8. 

In an effort to ascertain what activities are arriving at a fixed 
status in extension work, a discrimination was made in Table 2 in 
the columns under the head of "Frequency of activities." The 
occasions which took place on fixed days of the week or month are 
reported in a manner which shows both their frequency and their 
regularity; those occurring irregularly, or sporadically, are reported 
by numerals which tell the number of such occasions during the 
period covered by the report; both sets of figures together record all 
the lines of work (other than organized night instruction) engaged in 
at the respective schools. 

To ascertain the relative degree of regularity attained by the 
various lines of activity in these 53 cities, the times they were reported 
regular and the times irregular have been tabulated, and the results 
are shown in figure 1. The total number of times reported is a 
measure, too, of the prevalence of the various lines, and their ranks 
in this respect are shown by the lengths of the respective bars. 

By inspection of the diagram it will be seen that the three most 
prevalent activities are some form of athletics, clubs for young 
people, and lectures, while the least common, as would have been 
expected, are the civic and the general social occasions. A school 
which is the scene of frequent mass meetings, banquets, and neighbor- 
hood parties has reached a completeness of socialization that is as 
yet not so very common. Athletics, club-work, and rooms for 
reading or quiet games are regular activities in 90 or more per cent 
of the cases reported, a fact which evidences their stability and 
importance hi extension work. Lectures and entertainments, while 
in the upper half as respects prevalence, do not stand so high in 
regularity because of their popularity in schools whose extension 
activity is still in its early and rather miscellaneous stage. Games 
and clubs are naturally not started until a series of meetings or events 
can be arranged. The high degree of regularity attained by social 



42 



THE EXTENSION OF PUBLIC EDUCATION. 



dancing indicates that it lias been introduced, predominantly in 
schools where the extension work has been somewhat systematized 
and is therefore backed by definite and fairly strong forces. The 
parent-teacher and other adult society meetings are actually probably 
much more regular in their occurrence than appears from the diagram, 
but as many of them meet only once a month, and sometimes skip a 
meeting, their regularity would not be so apparent in an investigation 
covering only three months. 

To obtain a more compact statement of the extension activities of 
these cities, a tabulation was made of their cards for the single 



LINKS OF ACTIVITY. 



Per cent 
regular. 



Athletics, gymnastics, bathing, \ 9 g 
active, games, or folk dancing. / 



Clubs (social, athletic, etc.) or 
groups (musical, handicraft, J- 90 
etc.) 



q 



Entertainments (concerts, etc.).. 30 



Rooms open for quiet games, \ „. 
reading, or study. / ao 



Times 
reported. 




142 



Dancing (social) 81 



Society meetings (adults) 45 



Social occasions (parties, ban- \ „ 2 
quets, etc.) J 



Civic occasions, mass meetings, \ „„ 
public discussions. / 




60 



Figure 1 . — Regularity of extension activities. Black portion of bar represents times activity was reported 
as occurring regularly and white portion times activity was occasional and irregular in occurrence. 

month of March, the results of which are shown in Table 4. In 8 of 
the 53 cities included in Table 2 the records for March were either 
lacking or defective, and these cities were consequently omitted. 
The phrase "group-occasion," which appears at the head of several 
columns, means one meeting of one group, all the people meeting in 
one room being counted as one group. The Evening Use Record 
cards showed the number of rooms used for each occasion hi each line 
of activity during the month. Thus, if a record showed that 5 rooms 
were occupied by clubs on a single night, that meant 5 group-occa- 
sions, and if the same number of rooms were used 4 times during the 
month it meant 20 group-occasions to the credit of club work. 



MAOJMITUDK OK LOCAL UNDERTAKINGS. 



43 



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44 



THE EXTENSION OE PUBLIC EDUCATION, 



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meet- 
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MAGNITUDE OF LOCAL UNDERTAKINGS. 45 

The justification for this practice is to be found in the fact that in 
school extension the administrative unit is always the group. The 
aim of the organizer or director is always to bring together an audi- 
ence, a class, a club, an association, a coterie, or some other kind of 
group. He seldom works purely for numbers. It may require quite 
as much effort to organize a boys' club of 20 members as to bring 
together an audience of 100 people. It is believed, therefore, that the 
number of group-occasions held is a more accurate measure of the 
products of administrative energy than the aggregate attendance. 

Each line in Table 4 gives a concise summary of a city's extension 
work. It shows how many schools were open for the various fre- 
quencies a week, the whole number of schools open, how many 
group-occasions occurred, and how these were distributed among the 
various lines of activities. The per cents in the columns 11-19 show 
in comparable terms the stress laid on the different activities by 
the respective cities. 

A general tendency is observable in the fact that most of the cities 
reporting high numbers of schools open are credited with high num- 
bers of group-occasions per school. That is, the more general school 
extension is, the more intensively it is prosecuted. Group-occasions 
in all 9 categories of activities are reported by Chicago, Grand Rapids, 
Los Angeles, Minneapolis, New York, and Philadelphia — cities which 
have highly developed extension systems under school board, park 
board, recreation commission, or some other form of municipal con- 
trol. Louisville, which exhibits 8 lines of activity, has a system 
administered entirely by voluntary agencies, the board of education 
furnishing only heat, light, and janitor service and some equipment. 
The totals for columns 2-9 are as follows: 

Summary of Table 4- 

Schools open per week in March, 1914: 

Six times 35 

Five times 33 

Four times 53 

Three times 43 

Two times 84 

Once 19 

Total 267 

Activities for March, 1914: 

All group-occasions 16, 492 

Group-occasions per school 62 

From the above it would appear that 2 and 4 times a week are the 
preferred frequencies, with 6 times next, but a closer examination 
shows that this order is due to the heavy numbers in the larger 
systems. Giving all cities the same weight, without respect to the 
number of schools reported, it is found that more cities report under 



46 



THE EXTENSION OF PUBLIC EDUCATION. 



3 times, with 2 and 4 times coming next, and 6 times last. In the 
same way the number of group-occasions per school is boosted by 
the figures from such cities as New York, Minneapolis, and Chicago, 
the average of the averages for all 45 cities being only 27 group- 
occasions per school. 

LINES OF ACTIVITY COMPARED AS TO VOLUME. 

The distribution of the total number of group-occasions presented 
in Table 4 among the 9 lines of activity is shown in Table 5. 

Table 5. — Distribution among lines of activity of all group-occasions in 45 cities during 

March, 1914. 



Activities. 



Per cent. 



Athletics, gymnastics, bathing, active games, or folk dancing... 
Clubs (social, athletic, etc.) or groups (musical, handicraft, etc.) 

Rooms open for quiet games, reading or study 

Dancing (social) - - 

Lectures 

Entertainments (concerts, etc.) 

Society meetings (adults) 

Civic occasions, mass meetings, public discussions 

Social occasions (parties, banquets, etc.) 

Total 




On page 42 we saw that the three lines of activity ranking highest 
in respect to regularity were athletics, club work, and reading or game 
rooms. That ranking was based upon the number of times they were 
reported regular in extension programs. Table 5 shows where these 
three lines stand in a comparison made on the basis of ouTk. Meas- 
ured by the group-occasion unit, the three make up 80 l per cent of 
the product of school-extension energy in the 45 cities, assuming that 
the March programs are fairly representative for the whole season. 
As these cities exhibit a wide range of activity and are well scattered 
geographically, it is reasonable to believe that the importance which 
they give to athletics, club work, and study or games rooms is typical 
for the whole country. Eighty per cent may be an overstatement of 
the proportion. " Pulling off" five basket-ball games may not repre- 
sent five times the effort required to "put on" one lecture, but the 
ratio is certainly nearer five than it is one. The main conclusion, 
then, to be drawn from Table 5 is that about three-quarters of the 
effort put into aggressive and systematic school extension is ex- 
pended upon recreation, while the remaining quarter goes into activi- 
ties of a cultural, civic, or social character. 

But, as has been pointed out, a unit of administrative energy ex- 
pended upon a lecture ordinarily reaches more people than one ex- 



1 With New York City's 11,294 group-occasions subtracted, the per cent for these three lines of activity 
is 73, but the ranking of the various lines is substantially the. same. 



LINES OF ACTIVITY COMPARED AS TO VOLUME. 



47 



pended upon a boys' club. The groups assembled by the several 
kinds of activity vary in size. To show the approximate number of 
human beings affected by the extension work in these 45 cities during 
a single month is the purpose of Table 6. Since the Evening Use 
Record cards did not give any data upon attendance, it lias been 
necessary to estimate the size of the average group in each line of 
activity. The estimates which have been made are lower than the 
attendance figures given in many printed reports; so it is believed 
that they constitute a conservative statement of the actual facts. 

Table 6. — Estimated attendance (it 16,492 group-occasions in ■/'•> cities for March, 1914. 



Activities. 



Athletics, gymnast ics, bathing, active games, or folk dancing 

Dancing (social) 

Lectures 

Entertainments (concerts, etc.) 

Clubs (social, athletic, etc.) or groups (musical, handicraft , etc.) 

Rooms open for quiet games, reading, or study 

Social occasions (parties, banquets, etc.) 

Civic occasioas, mass meetings, public discussions 

Society meetings (adults) 

Total 





Attendance 


Group- 


estimated 


occasions. 


per 




occasion. 


5,504 


35 


999 


150 


784 


150 


539 


200 


4,516 


20 


3,165 


•_':"> 


217 


250 


233 


150 


535 


40 


16, 492 


1,020 



Aggregate 
attendance. 



192, 6 10 
149,850 
117.61)0 
.107, K00 
9(1.320 
79, 125 
54,250 
34,950 
21,400 

847,935 



What these figures mean in the terms of human welfare, will be 
more apparent if we think of the 847.935 attendances as so many 
evenings spent in wholesome activity within an improving environ- 
ment by persons many of whom would otherwise have spent that 
time in less beneficial or positively harmful pastimes. This total 
does not represent that many different beneficiaries, because it fre- 
quently includes several attendances of the same individual. It 
represents rather 847,935 impacts upon human beings of the school's 
elevating influence, and whether scattered over many persons or con- 
centrated upon a few, it summarizes the tremendous force for right- 
eousness that was exerted by one month's extension work in these 
45 cities. It will possibly bring the actual effects of such a force' 
closer to the comprehension, if we translate it, into the terms of a more 
continuous influence upon fewer persons. For example, the combined 
attendances in athletics, clubs, and games, or reading rooms, if con- 
fined to 115 boys, would make it sure that every one of their week- 
day evenings throughout the troublesome years from 15 to 25 would 
be spent in the safe shelter of the schoolhouse. If the 1 19,850 attend- 
ances at social dancing were similarly concentrated, they would afford 
144 couples weekly dances under wholesome auspices for the same 
number of years. How many out of every 115 average city youths, 
or what proportion of every 144 boarding-house and apartment- 
dwelling young couples arc irretrievably wrecked during this period 



48 THE EXTENSION OF PUBLIC EDUCATION. 

of life by the saloon, the vicious dance-hall, and the burlesque theater, 
no one can state, but that some number, some proportion, of them are 
thus actually lost is the certain conviction of every well-informed 
person. Now, whether this ratio is 50 or 5, is not the salvage that 
would be affected by opening all the school buildings evenings worth 
to society all the expenditure of effort and means it would cost? 

The dullness, the prosiness, and the isolation from live social and 
civic currents which are so often the lot of the middle-aged — how 
much were they mitigated by this month's extension work ? If the 
combined attendances at the lectures, entertainments, civic occasions, 
and society meetings were spread out, they would yield a weekly 



Society meetings (adults). 



Civic occasions, mass meetings, 
public discussions. 

Social occasions (parties, banquets, 
etc.). 



Rooms open for quiet games, read- 
ing, or study. 

Clubs (social, athletic, etc.) or 
groups (musical, handicraft, etc.). 



Entertainments (concerts, etc.). 

Lectures. 

Dancing (social). 



Athletics, gymnastics, bathing, ac- 
tive games, or folk dancing. 



21,400 








34,950 






54,250 






79,125 






90,3 


20 






107,800 






117,600 






149,850 





192 640 



Figure 2.— Lines of activity compared as to the number of persons benefited. Based upon an esti- 
mated aggregate attendance of 847,935 at 16,492 group-occasions in 45 cities during March 1914. 

entertainment to 135 husbands and wives for two decades. Combin- 
ing the estimated figures for all lines of activity, they represent 3 
evenings a week of well-employed leisure for 76 persons throughout 
the length of life allotted to mankind by the scriptures. The pro- 
portions of the attendances in the several lines of activity are graphi- 
cally shown in figure 2. 

We have been attempting to state the amount of organized exten- 
sion work in 267 public schools of 45 cities during a single month of the 
winter of 1913-14. The total amount of such work in all the cities 
of the country during that season can only be conjectured. We have 
presented in Table 2 the records of 296 schools in 53 cities. Accord- 
ing to trustworthy reports possessed by the Russell Sage Foundation, 



SUREAU OF EDUCATION 



BULLETIN, 1915, NO. 28 PLATE 5 




A. THE LOUISVILLE HOUSEKEEPERS' CONFERENCE CELEBRATING. 




B. AN UNUSED SCHOOLROOM WHICH BECAME AN ATTRACTIVE LIBRARY STATION. 



BUREAU OF EDUCATION 



BULLETIN, 1915, NO. 28 PLATE 6 




A. SOCIAL CENTER GROUPS HOLDING A PLAY FESTIVAL. 




B. A LITlLE MOTHERS' CLUB LEARNING THE MYSTERIES OF BABY'S BATH. 






BUREAU OF EDUCATION 



BULLETIN, 1915, NO. 28 PLATE 7 




A. A MILWAUKEE POOL ROOM THAT IS NOT ATTACHED TO A SALOON. 







B. AN ITALIAN BAND THAT WAS HELPED BY THE PRIVILEGE OF PRACTICING 

IN A CLASSROOM. 







A. DANCING AMONG FRIENDS AT ONE OF THE NEW YORK RECREATION CENTERS. 




B. PHYSICAL CULTURE WITHOUT FEES. 



LINES OF ACTIVITY COMPARED AS TO VOLUME. 49 

there were the same season at least 29 other cities * which carried on 
systematic extension work. They did not appear in Table 2 because 
no Evening Use Eecord cards were received from them. The supple- 
mentary reports from these 29 cities indicate, however, 105 schools 
which would have been eligible for inclusion if cards had been sent 
in. This number added to the 296 enumerated in Table 2 gives us 
a total, in round numbers, of 400 schools which may be rated as in 
the same general class as respects volume of evening occasions. We 
have already seen (summary of Table 4) that 267 schools, or about 
two-thirds of the 400, provided over 16,000 group-occasions in one 
month. To say then that the 400 must have provided some 24,000 
occasions in the same period would be a logical conclusion were it not 
for the practical certainty that the untabulated third would not 
average up as highly as the tabulated two-thirds. This certainty is 
based upon the fact that New York City alone furnished 11,294, or 
68 per cent, of the 16,492 occasions shown in the tables, and there are, 
of course, no other cities of the same size in the untabulated group. 
With New York left out of Table 4, the number of group-occasions 
per school was 37 and this is probably a safe average to attribute to 
the untabulated 133 schools. An estimate computed on this basis 
gives 21.413 evening group-occasions in 400 schools during March, 
1914. 

The length of the school extension season in the different cities 
varies greatly. In a few it lasts throughout the year; in a small 
number October and April mark its limits; in many places it does 
not get well under way until some time in November, and gradually 
tapers off in March. To estimate a three months' season as the aver- 
age for the country as a whole is probably putting it well within the 
actual fact, and, since March is one of the poorer months, multiplying 
its figures by three to obtain the grand total of 64,239 group-occa- 
sions for the season is a calculation that also leans toward conserva- 
tism. The attendances estimated per occasion in Table 6 average 51 
for all lines of activity. On the same basis the 64,239 group-occa- 
sions would represent an aggregate attendance in the 400 schools 
during the winter of 1913-14 of 3,276,189. That is to say, the 
gatherings (outside of the regular night-school classes) in those 
schools of 82 cities which were devoted to systematic extension work 
totaled for one season over three and a quarter millions of people. 
These figures are, of course, not set forth as accurate statistics of 
attendance. They represent merely an estimate, but one that is 
believed to be well below the real fact. 

i These cities are: Allentown, Pa.; Aurora, 111.; Baltimore, Md. ; Bloomfield, N.J. ; Boston, Mass.; Buffalo, 
N. Y.; Cincinnati, Ohio; Cleveland, Ohio; Detroit, Mich.; Duluth, Minn.; Gary, Ind.; Hoboken, N. J.: 
Jersey City, N. J.; Kansas City, Mo.; Lawrence, Mass.; Lexington, Ky,; Milwaukee, Wis.; Omaha, Xebr.; 
Orange, N.J.; Pittsburgh, Pa.; Reading, Pa.; Richmond, Va.; St. Paul, Minn.: San Francisco, CaL; Santa 
Rosa, Cal.; Superior, Wis.; West Hoboken, N. J.; West Orange, N. J.; Youngstown, Ohio. 

97381°— 15 4 



50 



THE EXTENSION OF PUBLIC EDUCATION. 



It will be remembered that no schools (see p. 30) were included in 
Table 2 whose evenings open fell below twice a week (or one night 
for two lines of activity) in frequency during the period of the report. 
This rule excluded not only many schools located in the 53 cities 
represented in the table, but all of the schools in 52 other cities 1 
from which filled-out Evening Use Record cards were received. So 
the extension work we have analyzed in detail is that of selected 
cities and in each city of selected schools. It represents only a 
slice off the top of a pyramid of wider use, whether viewed from i he 
standpoint of the country as a whole or that of the individual city. 
The lower part of this pyramid, in the case of the country, was 
vaguely outlined in the first list (Table 1) of 603 cities. To give for 
the individual city a more definite idea of the excluded portion of 
the pyramid is the object of Table 7. In these five cities the com- 
pleteness of the records furnished by the school authorities enables 
us to state accurately the number of the schools whose evenings 
open were below the standard of frequency which we arbitrarily set 
and how many group-occasions took place in them during one month. 

Table 7. — Group-occasions during March, 1914, in selected (tabulated) schools compared 
with those of excluded schools in five cities. 



Cities. 



Louisville, Ky 

Minneapolis, Minn 
Philadelphia, Pa.. 

St. Louis, Mo 

South Bend, Ind.. 



Schools. 



Selected. 



Group- 
occasions. 



101 

913 

507 

91 



Group- 
occasions 
per 
school. 



Excluded. 



Schools. 



Group- 
occasions. 



58 
389 
462 



Group- 
occasions 

per 
school. 



The figures for four (South Bend not in tabulated list) cities show 
that the schools in the excluded list are from three to nine times as 
many as those in the selected lot, and while they can not be taken 
as the ratio for the country as a whole they throw a clear side light 
upon the broad, pyramidal outlines of the extension work in the 
individual city. Generalizing roughly, the extent of wider use is 
inversely proportional to its intensity. 

1 Cities reporting extension activities which are not tabulated: Adrian, Mich.; Annapolis, Md.; Beards- 
town, 111.; Beverly, Mass.; Boulder, Colo.; Charleston, S. C; Chelsea, Mass.; Chicopee, Mass.; Clinton, 
Mass.; Dunkirk, N. Y.; Elmira, N. Y.; El Paso, Tex.; Everett, Mass.; Fargo, N. Dak.; Fresno, Cal.; 
Greenfield, Mass.; Harvey, 111.; Holyoke, Mass.; Iola, Kans.; Kansas City, Mo.; La Salle, 111.; Leomin- 
ster, Mass.; Marquette, Mich.; Marshneld, Wis:; Michigan City, Ind.; Muskegon, Mich.; Nelsonville, 
Ohio.; New Bedford, Mass.; Noblesville, Ind.; Olympia, Wash.; Pana, 111.; Pasadena, Cal.; Paterson, 
N. J.; Prescott,Ariz.; Rahway, N. J.; Rutherford, N. J.; St. Cloud, Minn.; Santa Ana, Cal.; Scranton, 
Pa.; Selma, Ala.; South Bend, Ind.; Southington, C6nn.; Springfield, 111.; Springfield, Mass.; Stoneham„ 
Mass.; Summit, N. J.; Swissvale, Pa.; Wabash, Ind.; Westerly, R. I.; White Plains, N. Y.; AVhiting, 
Ind.; Windber, Pa. 



THE EXTENSION OF PUBLIC EDUCATION. 



51 



EXTENSION ACTIVITIES BEFORE 6 P. M. 

Brief mention only can be made of the growth in activities in 
public schoolhouses during the interval between the afternoon dis- 
missal of classes and nightfall. In high schools this has long been a 
favorite period for meetings of student societies and athletic con- 
tests both in and out of doors, and now a similar practice has got 
under way in the elementary schools. In many places, immediately 
after school is the hour for the teachers' meeting and the time when 
the mothers' club meets in the kindergarten. To these occasions are 
being added others which have grown out of various local educa- 
tional and social needs. For example, in Grand Rapids, Mich., 
parochial classes in domestic science use the public schools on certain 
afternoons from 4 to 6 o'clock, and three times a week the parents' 
council meets at 3.30 p. m. In Evanston, 111., a children's class in 
gymnastic dancing supported by membership fees, a children's orches- 
tra, the room basket-ball teams, and several other pupil organiza- 
tions keep school buildings open after the ordinary closing time. 
These are samples only of the miscellaneous afternoon occasions 
which are developing spontaneously in the schoolhouses of many cities. 

In some places the after-school day activities have been placed 
upon a systematic basis. In Louisville, Ky., programs averaging 
from 82 to 20 group-occasions a month were given during the season 
of 1913-14 in four schools, which, after supper, were also devoted to 
social center work. The afternoon activities included story telling 
and lectures, entertainments, adult society meetings, some form of 
athletics, club work, and games or reading rooms. For a number of 
years the physical training department in Newark, N. J., has organ- 
ized folk dancing, basket ball, and games for the after-school enjoy- 
ment of the regular pupils, and similar opportunities are afforded in 
other cities, sometimes under a school athletic league and sometimes 
under a playground organization. In New York City much of the 
Public Schools Athletic League work has for many years been car- 
ried on at the close of classes. For the school year of 1913-14 the 
physical training department of this city was allowed an appropria- 
tion of $79,000 for opening 163 after-school play centers. Through 
this provision playrooms and yards were thrown open, under super- 
vision, to the public from 3 to 5 p. m. five times a week. The attend- 
ance and growth of this work are indicated by the following figures: 

Table 8. — Attendance for two years on March 5 at the New York after-school play centt rs. 



1914 



Boys. 
Girls. 



Total 104, 268 



88,359 
15,909 



126,977 
21, 758 



148, 735 



52 THE EXTENSION OF PUBLIC EDUCATION. 

Other phases of this subject are the (a) lengthening of the regular 
day program as illustrated in the case of the Gary plan and its 
imitators, and (b) the extension of the school year that is accom- 
plished by the vacation session and the all-year school, but no recent 
data upon these features are available for this discussion. Casual 
reports, however, indicate steady growth in all of these fields. 

LETTING REGULATIONS. 

The marked increase of late years in miscellaneous evening occa- 
sions in school buildings is largely due to the new spirit which has 
appeared in school letting rules. It does not yet pervade all of them, 
but each year sees an extension of its. vogue. It is well expressed in 
the regulations (published March, 1914) recently adopted by the 
Joliet (111.) Board of Education. 

In order that the public school plant may serve a wider community use, the board 
of school inspectors will bear the expense of lighting, heat, and janitor service when 
the school is used for the following purposes: 

(1) Adult clubs or organizations for the discussion of educational, civic, and com- 
munity problems. 

(2) Public lectures, entertainments, or indoor recreational or educational activities. 

(3) Club work among young people — literary, musical, dramatic, social — under 
supervision arranged by the school authorities. 

(4) Political discussions may be permitted when announced in advance, and equal 
opportunity given for presentation of both sides of the question, in accord with the 
American spirit of fair play. 

The above activities must be determined and controlled by a free organization of 
patrons and teachers of the community. The present rule barring the use of tobacco 
on school premises must be respected. 

Free use of school accommodations has for some time been pretty 
generally accorded to parent-teacher societies and other associations 
with allied aims. Some cities still forbid the holding of pay enter- 
tainments by such organizations, while others give this privilege when 
the proceeds are for the advancement of educational purposes or for 
the benefit of the general public. When any charge is made to bodies 
in this group, it is usually only that required for the extra compensa- 
tion of the janitor. A minority of cities ask such organizations to 
defray also the expense of heat and light. 

But the more significant fact is the tendency that is exhibited in the 
Joliet rules just quoted. It is the recognition of the principle that a 
school board is exercising an educational function when it gives the 
use of an auditorium to a woman's club, an antituberculosis society, 
or an amateur musical club. If the occasions of these and similar 
organizations do add to a community's fund of knowledge, culture, 
and civic life, then the facilitation of them through the donation of 
school accommodations is strictly within the purposes of a board of 



I.KTTTNC REGULATIONS. 53 

education. This attitude is illustrated in a rule passed by the school 
board in Long Branch, N. J., after the opening of a new buildino-: 

It shall be open to all meetings of citizens for the discussion of public questions 
intended to benefit the city; for meetings of civic clubs; for meetings of associations of 
unrestricted membership, whose object is improvement or public welfare, as woman's 
clubs, choral societies, etc.; for entertainments and lectures to which the public are 
admitted free or of which, if admission is charged, the proceeds are for the benefit 
of the general public. 

The difficulty inherent in applying such a hospitable rule is that of 
making certain that public motives predominate over private mo- 
tives in the purposes of the group desiring to use the buildings. A 
solution of this problem, which is widely favored, is the requirement of 
unrestricted membership already mentioned in the Long Branch rule. 
Wisconsin, California, Indiana, and Maryland have made it obli- 
gatory, by legislative enactment, upon school boards to grant the 
privileges of school edifices to all nonpartisan, nonsectarian, and 
nonexclusive organizations without cost. 

Of course every evening opening of a schoolhouse does cause addi- 
tional expense to somebody. The janitor's good nature will cover a 
slight margin of extra work, but its limits are very quickly found. 
The contingent fund or some margin in the general maintenance 
appropriation ordinarily gives a school board a certain amount of 
leeway in supplies of gas, electricity, or coal. Within this leeway a 
certain number of extra demands can be made upon these supplies. 
When, however, the evening occasions exceed that number, some 
definite provision has to be made for the extra cost. In the majority 
of cases now it is assessed, as accurately as it can be estimated, 
upon the organizations which enjoy the use of the buildings. 

A clear formulation of this principle, together with some experience 
gained in applying it and a recognition of the wisdom of appropriating 
funds definitely for the defrayal of the expenses incidental to the 
opening of school auditoriums for public purposes, is to be found in 
the following statement (dated Dec. 13, 1913) by Supt. Henry Snyder, 
of the policy pursued by the Jersey City Board of Education: 

In the spring of 1912 the board of education began the practice of allowing recog- 
nized political parties, or local divisions of them, to use any of the schools that might 
be desired for political meetings. It is very interesting to note that on May 22, 23, 24, 
and 25, 1912, Senator La Follette, ex-President Roosevelt, President Taft, and Gov. 
Wilson, candidates for the Presidency of the United States, successively appeared 
and delivered addresses in the order named in the auditorium of the William L. Dick- 
inson High School. Political meetings were held in the schools in the spring and fall 
of 1912 and in the spring and fall of 1913. 

As has been stated, the board of education pays the cost of maintaining community 
centers. For the present school year the board has also assumed the cost of operation 
in the case of the People's Institute. In the cases of other activities, however, no pro- 
vision has been made for defraying the cost of operation out of public funds. The 



54 THE EXTENSION OF PUBLIC EDUCATION. 

board has, therefore, required all outside agencies which use the school buildings to 
pay the actual cost. The board has carefully avoided considering the amount so paid 
as rental. It has determined as accurately as possible the actual cost to the board of 
opening and operating the schools used for public purposes, and has required those 
who use them to pay, in each case, the sum fixed. This policy has been followed 
because the board did not wish to divert the moneys appropriated for the education of 
the young in the day schools or other schools to other purposes. At the same time it 
has been our belief that the public should have as generous use of the school buildings 
as was consistent with their use by pupils of school age, and that, therefore, the 
board could not be justified in charging a "rental " which might be intended as a source 
of profit, drawn necessarily from the people. "While such a profit, if there were one, 
should of course be devoted to regular school purposes, it would practically be an addi- 
tional incidental appropriation or contribution made by the people. While the 
amount might be small, the principle im^olved could hardly be defended. Further- 
more, it has been our desire not to place obstacles in the way of the use of the school 
buildings by the public by imposing a charge for such use which might be prohibitive, 
but on the other hand to encourage such use by fixing the charge at the actual cost to 
the board. We believe, moreover, that the board of education or the city should pro- 
vide funds for the use of any school which may be granted by the board of education 
to citizens, and hope that specific appropriations may be made for the purpose. It 
should be assumed that from the public use of the school buildings by the public, 
authorized or permitted by the board of education, there will accrue a recognized 
public benefit and that the cost of such use should therefore be paid by the public. 

The board of education has as yet not adopted formal rules regulating and limiting 
the use of school buildings by the public. It has preferred to act on each application 
in accordance with a liberal yet careful policy. It does not, on the one hand, desire 
to prevent any proper use of the buildings, nor on the other hand does it desire to put 
itself in a position in which it would be compelled by a technical interpretation of 
formal rules to allow the use of school buildings for private or personal profit. As 
experience accumulates, it will be possible to formulate in time liberal and yet wise 
rules which will accomplish both purposes. 

I ought to say that the experience that we have had in permitting the general use of 
the schools to the public has justified the policy of the board of education. We find 
that the public has appreciated the privilege. We have, of course, always made ample 
provision for protecting the buildings against damage and have required those using 
the buildings to pledge themselves to repair any damage. I am glad to say that those 
who have used the buildings have been careful of them and have not inflicted any 
material damage. They have recognized quite willingly the propriety of the pro- 
hibition against smoking in the buildings and have complied in general with the 
requirements, which have been the same as those which govern the usual school 
gatherings. 

The suggestion made above that a municipality might well make a 
specific appropriation for the purpose of facilitating the wider use of 
school buildings by outside organizations has already been applied 
by New York City. This city's school budget for 1914 contained a 
sum of over $5,000 and that of 1915 one of over $9,000 for the pay- 
ment of janitors' fees in connection with the social center activities 
carried on in public schools by a number of voluntary organizations. 
These bodies were contributing funds and workers to the maintenance 
of wholesome amusements and social opportunities in addition to 
those being provided by the board's regular recreation workers. By 



LETTING REGULATIONS. 55 

taking over the janitor's fees the city authorities not only showed a 
substantial recognition of the importance of the work but were of 
direct assistance m extending it. The amount of the appropriation 
is determined through consultation with the representatives of the 
voluntary associations upon the basis of their respective schedules of 
schoolhouse occasions planned for the coming year. This instance 
illustrates an interesting development in the relation between school 
boards and voluntary organizations. It shows the feasibility of 
granting permits for an extended period of time to outside bodies of 
approved responsibility and a sincere interest in public welfare. 

Some of the social center organizations just referred to in New 
York City were maintaining activities in school buildings four or 
five nights a week. Under such circumstances a special permit 
could not of course be issued for each occasion, so a practice devel- 
oped of giving to such organizations an extended permit revocable 
at the pleasure of the board, granting the use of certain accommoda- 
tions for an indefinite period. In accordance with the provisions of 
this understanding, these organizations have also been holding con- 
certs, motion-picture entertainments, and social dances, at which an 
admission fee has been charged. The funds thus obtained have 
been used for the maintenance of the activities. A statement of 
receipts and disbursements is made periodically by the organizations 
to the board of education. This practice has now been going on for 
several years, and at the present time there are some score or more 
of schools in which voluntary groups are operating. In considera- 
tion of the wholesale character of the use which is made of school 
property and the public ends thereby accomplished, there is a pro- 
priety in making special arrangements and rates for these cooperat- 
ing organizations. This practice has of course been followed in the 
case of home and school organizations in many cities. It is now 
being extended to other groups having more or less similar purposes. 

In regard to the use of school buildings by religious organizations, 
no new tendency seems to be discernible. The greatest variety of 
practice prevails. In some places the ban upon all sectarian occa- 
sions within school premises is rigidly maintained, while in others 
considerable latitude is allowed. In Grand Rapids certain grades 
from the parochial schools come afternoons to the public school for 
domestic science instruction. In Sioux City, for example, many of 
the schools are used for Sunday School purposes, while the Jewish 
people and some other sects are using the schoolhouses after 4 
o'clock for their own particular instruction. These are sporadic 
instances. In isolated communities of a common religious persua- 
sion school buildings have always been and are still used more or 
less frequently by sectarian organizations; but that such use is on 
the increase or on the wane can not be confidently stated. 



56 THE EXTENSION OF PUBLIC EDUCATION. 

In respect to the political use of school buildings, however, there 
are evidences of a growing liberality. During the spring election of 
1914 in Chicago, 142 school buildings were used for political meetings, 
four-fifths of which were under partisan auspices. At the same 
election 75 school buildings were used as polling places. Reference 
has already been made to the political meetings in Jersey City school 
buildings, and the reports from the country as a whole show a nota- 
ble increase in such occasions. In practically all of these instances, 
especially in the case of meetings under partisan auspices, a fee is 
charged, generally somewhat in excess of the actual cost for opening 
the building. The letting of school buildings at a fee which involves 
a profit for all sorts of occasions is very general throughout the United 
States. The more significant changes in school board policy are 
those in the direction of greater hospitality to outside organizations 
as outlined above. 

TYPES OF SCHOOL EXTENSION ADMINISTRATION. 

In the evolution of administrative machinery the earliest form is 
probably represented by the passive letting of school accommoda- 
tions to outside groups. Even within this stage there are degrees 
of effectiveness. Some school boards which have not yet taken an 
aggressive attitude have nevertheless encouraged wider use through 
simplification of the letting procedure and thus really have brought 
about considerable use of school property outside of class hours. 

In Cleveland, Ohio, during the school year 1913-14, 298 organiza- 
tions used the gymnasiums and auditoriums of 74 buildings a total of 
1,932 times, for which privilege they paid custodians' fees amounting 
to $1,729.81. The records of many other cities would show an 
extended use of a similarly spontaneous character. 

School extension administration does not, however, assume a 
positive form until there is some body, or specialized part of some 
body, whose specific purpose it is to initiate and carry on extension 
activities. At first this new function is ordinarily assumed by some 
body outside of the school or municipal government. As it grows in 
size and importance, it passes from the voluntary body to some 
branch of the municipal government — in its ultimate phase, to the 
board of education. Examples illustrating the different steps in 
this evolutionary process may be briefly mentioned. 

1. Voluntary initiative and support. — In Allentown, Pa., Wheeling, 
W. Va., and Youngstown, Ohio, the local playground association 
provides a supervisor and supports social centers in public schools. 
The voluntary organization may also be a woman's club or some 
other association. In Trenton, N. J., it is the Social Center League, 
whose work has the assistance of principals and teachers. 



BUREAU OF EDUCATION 



SULLETIN, 1915, NO. 28 PLATE 9 




A. PREPARING THE SCHOOL WORK IN A STUDIOUS ENVIRONMENT. 




B. A CHECKERS TOURNAMENT. 
An old-time amusement affording increased enjoyment. 



BUREAU OF EDUCATION 



BULLETIN, 1915, NO. 28 PLATE 10 





it 


i 
I 




^, 


§L 


1 ' : 1 





A. 



BALLOTING FOR THE OFFICERS OF A NEW YORK COMMUNITY CENTER 
ORGANIZATION. 




A NEIGHBORHOOD COMMISSION WHICH GOVERNS THE CENTER AT P. S. 41, 
MANHATTAN, NEW YORK CITY. 



BUREAU OF EDUCATION 



BULLETIN, 1915, NO. 28 PLATE V 




A. A HUNGARIAN DANCE IN A "PAGEANT OF ALL NATIONS." 

This affair was produced by the community center at P. S. 63, Manhattan, New York City. 
Courtesy of International News Service. 




B. THE MOTHERS OF A NEIGHBORHOOD GETTING TOGETHER. 



TYPES OF SCHOOL EXTENSION ADMINISTRATION'. 57 

2. School hoard committee with citizen cooperation. — This type is 
exemplified in Saugerties, N. Y., and Hannibal, Mo. In Plainfield, 
N. J., there is a citizens' committee on evening recreation, in which 
the board of education is represented by its president and the super- 
intendent of schools. This body employs the supervisor and controls 
the extension activities, maintenance funds for which are provided 
in part by the school board. In Louisville, Ky., the social centers 
are severally maintained by a local neighborhood organization. 
Each of these bodies sends two representatives to the "Social Center 
Council," which is composed of a member of the board of education, 
the superintendent of schools, the business director of the board, the 
director of the social centers (a volunteer), and the representatives 
from the various centers. The school board provides heat, light and 
janitor service, and a liberal amount of equipment. 

3. Municipal body other than school board. — Under an arrangement 
promoted by the local playground association in Grand Rapids, 
Mich., the park and school boards together maintain a department 
of municipal recreation, the board of education having jurisdiction 
over the social center, public school athletic league, and boy scout 
activities in the school buildings and the board of park commissioners 
controlling the playgrounds, swimming pools, and winter sports. 
These activities are all under the direct management of the super- 
visor of the department of municipal recreation. In this city the 
public library maintains branches open from noon until 9.30 in the 
evening hi six school buildings. In Philadelphia, the social centers 
formerly conducted by the Home and School League are now carried 
on by the Municipal Recreation Commission. In Kansas City, Mo., 
the Public Welfare Board cooperates with the board of education in 
the conduct of miscellaneous meetings, entertainments, and club 
activities in schoolhouses. 

4- Management vested in the school board. — This, the final stage in 
the administration of extension activities, also exhibits various 
degrees of development, corresponding to the rank of the person 
put in charge and the size of the staff employed. In Superior, Wis., 
each center is under a grade teacher especially employed to give 
part-time to social center supervision. In Pittsburgh, Pa., the 
director of the evening schools also has charge of the extension work, 
and is allowed a certain number of assistants for the conduct of social 
center groups. In Cincinnati, Ohio, a director of social centers gives 
his entire time to the development and direction of the neighborhood 
organizations which carry on the activities. An assistant superin- 
tendent of schools gives part of his time to the conduct of social and 
recreation centers in Chicago and Rochester. In Boston a director 
of extended use of public schools is employed, working directly under 



58 THE EXTENSION OF PUBLIC EDUCATION. 

the superintendent of schools and having the advisory assistance of a 
special committee of the Women's Municipal League. The director 
uses both paid and volunteer helpers. 

In Milwaukee a department of school extension runs the after- 
school playgrounds, social centers, and evening schools. In San 
Francisco a department of physical education, athletics, and social 
and lecture centers has been organized by the school board under one 
head, to have charge of the activities named. In New York City 
there is a department of public lectures under a supervisor of lectures, 
who reports directly to the board of education. Under the city 
superintendent of schools the director of physical training conducts 
after-school play centers and a division superintendent is assigned to 
the conduct of recreation centers, vacation schools, and school play- 
grounds, and there are also social and recreational activities connected 
with some of the evening schools. Alongside of the New York 
recreation centers under the supervision of their head have recently 
developed a number of community centers which are largely main- 
tained by local neighborhood organizations; most of which have been 
developed, however, through the expert leadership furnished by the 
People's Institute, several social settlements, and other voluntary 
organizations. This concluding phase of administrative control 
brings us to an aspect of the subject which is worthy of more extended 
consideration. 

COOPERATION IN CONTROL AND SUPPORT THROUGH NEIGHBOR= 
HOOD ORGANIZATION. 

The New York City community centers just referred to number 
at the present time (April, 1915) a score or more. Most of them are 
managed by a local association working in cooperation with members 
of the recreation center staff and an expert organizer contributed by 
a volunteer organization, as a rule, not of the neighborhood. With 
this expert tutelage and assistance the local association maintains 
social and recreational activities, some of which bring an income, 
such as social dancing, motion pictures, club dues, concerts and enter- 
tainments, association membership dues, and sale of refreshments. 
This is a comprehensive list, not every center using all of these means 
for raising an income. Among the other activities carried on at the 
various centers may be mentioned labor forums, game and study 
rooms, civic meetings, orchestra and mandolin club rehearsals, 
gymnasium work and athletics, summer playgrounds, and special 
holiday celebrations such as New Year's Eve parties and Christmas 
festivals. Most of these centers are open during the winter season 
five evenings a week, and in several cases where outdoor courts or roof 
gardens permit, social dancing and other amusements are provided 



COOPERATION IN CONTROL AND SUPPORT. 



50 



throughout the summer months. Some idea of the extent and suc- 
cess of this work can be gathered from a statement of their finances 
during one year. 

Table 9. — Funds raised in one year at four community centers in NewYorh City. 1 



Schools. 


•lifts. 


Receipts 
from 

activities. 


Total. 






$1,828.85 

2, 747. 0-i 

802. 13 

3,090.26 


$1,828 85 




$2, 1)23. 25 

3,311.78 

500. 00 


4, 770 29 




4,113.91 




3, 590. 20 




Total 


5,835.03 


8, 408. 28 


14,303 31 







1 Data obtained from a pamphlet, entitled " Notes on Community Center Work in School Buildings," 
published by the People's Institute, 70 Fifth Avenue, New York. This pamphlet and others of the 
.series give detailed accounts of these centers. 

The more significant aspects of the community-center development 
may be briefly mentioned. 

(a) While the community-center scheme of management puts a 
part of the cost upon the participants, the results of this arrangement 
have so far been not so evident in the reduction of expenses as in the 
extension of the center's benefits. It is probable that the expendi- 
ture of funds upon the expert leadership required for the development 
of the neighborhood organization will be considerable and con- 
tinuous, but it is believed that this item will occasion little remon- 
strance from the taxpayer in view of the large financial cooperation 
which is thus locally secured. Furthermore, the intimate contact 
with school matters which is brought about by the community center 
makes it an effective propagator of popular sentiment in support of 
the educational budget. 

(b) Another important effect of having local participation in the 
management and direction of the community center is the closer 
adaptation of its activities to the needs of the respective neighbor- 
hoods which is thereby secured. The public discussions will more 
likely be devoted to topics of vital and local interest; the social 
customs will conform more closely to local prejudices; the amuse- 
ments provided will supplement local deficiencies or tend to offset 
local menaces. 

(c) The assembling of a group of parents to think about the recrea- 
tional, social, and civic needs of their neighborhood occasions ardent 
discussions and fierce struggles between opposing ideals. The 
general controversy thus engendered accomplishes results of unusual 
educational value. The different coteries, circles, and cliques 
represented in the central group reverberate with the echoes from its 
meetings. Any standard of conduct which crystallizes as a result of 
the agitation and any solution reached concerning the problems con- 



60 THE EXTENSION OF PUBLIC EDUCATION. 

nected with the social and recreational life of the neighborhood will 
have much closer application and wider acceptance than any which 
could have been thrust upon the community by an outside agency. 

(d) The community center association is an end and not a means 
in this kind of school extension work. Getting a community to think 
and plan and conduct its own recreational affairs is a more advanced 
development than that represented by the case of a central agency 
conducting social and recreational affairs for a neighborhood. The 
nature of social life is such that it can not be thrust upon people 
from the outside. It must be the life of the people themselves or it 
is not social life. 

(e) The conditions of the development of a community center are 
present in every neighborhood that surrounds a schoolhouse. As a 
matter of fact, the various parent-teacher associations and ward- 
improvement societies now meeting in school buildings in many places 
throughout the country are community-center associations in embryo. 
Under the stimulation of expert guidance they could all be developed 
into active, capable agencies for comprehensive school-extension 
undertakings. 

ADAPTATION OF BUILDINGS FOR EXTENDED USE. 

Through the operation of both pedagogical and social motives, the 
newer elementary school edifices show an increasing suitability for 
community use. The publishers of the "American School Board 
Journal" have recently issued compilations of various building plans 
which have appeared in this periodical. 1 Of 115 grade school plans 
examined, 69 exhibited provision for auditoriums and 22 showed 
gymnasiums. In the majority of cases the latter feature appeared 
in schools which also had assembly rooms. There were a few, how- 
ever, which showed that the gymnasium was preferred to the audi- 
torium. In two-thirds of the cases the auditoriums were located on 
the first floor and the average capacity was around 500. Among the 
other features which are becoming commoner in new elementary 
school plans arc plunges and library rooms. In some cases the swim- 
ming pool is present, although the gymnasium is absent. A new 
Columbus, Ohio, school shows a gymnasium, lunchroom, and pool, but 
no auditorium. The collection of plans from which these conclu- 
sions have been drawn is made up, of course, of the more significant 
structures which have recently been erected and can not be con- 
sidered as representative for the country as a whole. They illustrate 
however, the most advanced and generous thinking now being done 
in this country in school architecture. 

1 "Grade School Buildings," compiled by Wm. C. Bruce, Bruce Publishing Co., Milwaukee, Wis. 
"High School Buildings," compiled by Wm. C, Bruce, American School Board Journal, Milwaukee, Wis. 



CONCLUSION. 61 

In Natchez, Miss., the Carpenter Memorial School contains not 
only a swimming pool and gymnasium, but capacious library accom- 
modations, the latter embracing reading and reference rooms and 
space for stacks. Preston Hall, the gift of a public-spirited citizen in 
Waitsburg, Wash., houses not only the vocational and physical edu- 
cation departments of the local high school, but a gymnasium, 
swimming pool, and pair of bowling alleys. The recreational facili- 
ties are for the benefit of all the citizens of the village. It would 
seem that private donors of school edifices are increasingly animated 
by the motive of furthering the community use of school buildings. 

Adaptability for other than regular school use is also showing itself 
in the seating. There are now three types of movable school desks 
and chairs on the market, and the use of this kind of furniture seems 
to be upon the increase. The Washington Irving High School, New 
York City, is equipped throughout, except in rooms allotted to 
special branches, with flat-topped desks and ordinary movable chairs. 

In Milwaukee the adaptation of school accommodations for social 
and recreational purposes has been greatly furthered by special 
equipment. The various social center directors are provided with 
private offices, roll-top desks, and telephones. For the storage 
of equipment closets and shelves are placed in convenient spaces in 
corridors and basements. Many of the rooms used for recreational 
purposes are located in the basement, and these have been made 
attractive and clublike through ample use of paint, pictures, and 
book cabinets, and a supply of chairs and plain tables. Partitions 
and gates have been set up where it was desirable to effect a separa- 
tion between the regular classrooms and those allotted for evening 
use. Many of the centers have modern shower-bath equipments, and 
25 pool tables have been installed. The assembly rooms are fitted 
with large electric lights of high candlepower and are stoutly screened 
to admit the use of the room for basket ball and similar games. 
Most of these large rooms have also been equipped with trough foot- 
lights and sliding curtains, as well as motion-picture booths, and one 
of the more prominent centers attracts the public through a large 
illuminated sign over the front entrance. 

All the indications seem to point toward a gradual transformation 
of school property such as will make it more suitable for the increased 
educational burden that is being laid upon it. 

CONCLUSION. 

In the midst of the extraordinary variety and diversity of school- 
extension undertakings it is not easy to find unity or simplicity. If 
we go deep enough, however, certain general truths do appear. In 
the first place the facts which have been presented throw into relief 



62 THE EXTENSION OF PUBLIC EDUCATION. 

a fundamental tendency of modern civilization. After release from 
toil individuals do not nowadays generally seek seclusion; they join 
with others in some mutually satisfying activity. From this stand- 
point a meeting of a civic association, an audience listening to a 
lecture, a regular night-school class in mechanical drawing, a reading 
room full of people, a social dancing party, a crowd at a basket-ball 
game are all the same sort of thing. They are groups or collections 
of individuals participating in or engaged by the same series of 
events. 

The influence of the group principle is often operative when persons 
are physically alone. The recluse student of philosophy is, more than 
he realizes, seeking the company of thinkers. The solitary reader of 
novels is associating with circles of people, even if they are fictitious 
in substance. The lonely magazine reader is often conscious of the 
particular class of subscribers who join him in his monthly menu. 
The newspaper is valued because it puts the individual in touch with 
the rest of the world. The isolated inventor or artist is animated by 
visions of the companies, societies, or audiences he will benefit, in- 
struct, or move. But even among this class of individuals personal 
association for the advancement of their special, purposes is on the 
increase. Scientists, researchers, musicians, and artists, especially 
during the apprentice period, are more and more working in public 
laboratories, libraries, classes, and leagues. 

As a rule, all group life whose inner workings will bear wide pub- 
licity meets wholesome human needs. There may be classes in 
pocket picking and crude conferences among gamblers, but they are 
not advertised in the public press. There may be gangs of burglars 
and panderers, but they avoid the limelight. One does not read of 
the annual meetings of the association of embezzlers, but the news- 
papers are full of the congresses and gatherings of all socially healthful 
bodies. It might indeed be laid down as a principle that the higher 
the approbation a group believes it is entitled to receive from society, 
the more confidently it will publish its meetings and doings. 

The services rendered in the functionings of the various groups to 
their respective members can not be ranked in degrees of importance. 
A dance which gives full expression to the social instincts of a party 
of healthy young people is probably meeting just as vital develop- 
mental needs as those which are satisfied by a learned discourse upon 
ethics before an audience of mature men and women. Generally it 
may be said that any leisure-time activity involving organization 
which a considerable group heartily, publicly, and unashamedly un- 
dertakes affords the precise kind of expression which, more than any 
other, it needs at that time and at the particular stage of development 
its members have reached. 



CONCLUSION. 63 

Associations of adults, not devoted to money-making, seldom exist 
for vicious ends. The loosest kind of an organization involves some 
subordination of individual desires, and persons given to uncontrolled 
selfishness are not usually willing to endure even this discipline. 
What many people join in working for is generally noble ; on the other 
hand, what a multitude passively receives may be mean ; it depends 
upon the purveyor. Men will witness a burlesque performance, 
which they could not be hired to join in producing. Thus it is with 
most of the unwholesome group activities. Instead of active partici- 
pation, they generally involve the consumption or passive witnessing 
of somebody else's products or doings. So that, generalizing roughly, 
it may be laid down that a group activity which encourages open 
self-expression on the part of the members is usually of a salutary 
nature. 

After the exactions of labor, people demand a period of freedom 
for the play of personal desire. They insist upon devoting their 
leisure to either amusement or play, to either self-satisfaction or 
self-expression. As we have seen, so far as group activities are con- 
cerned, deterioration is more likely to result from passive 1 amuse- 
ments than from personal expression. Whether an individual joins 
with a group devoted to indulgence or to one encouraging personal 
assertion is determined by several factors, chief of which is probably 
the degree of exhaustion. The person who feels no energy within 
demanding an outlet turns naturally toward passive amusement. 
This is, of course, especially true of elderly people. But the unfor- 
tunate fact is that a large number of youths and persons still in the 
hej^day of life are devoting their leisure to passive indulgence and 
degenerating satisfactions when their ample margins of energy could 
be recreatively expended in play and self-development. Wliat holds 
these persons back from the more active and profitable pastimes is 
not so much monetary poverty as it is the lack of space and leader- 
ship, and ignorance of the advantages and possibilities of group 
organization. Providing suitable meeting places and skillful group 
organizers woidd, for a vast majority of them, change the margin of 
the day from periods of waste and drifting into times of upbuilding 
and character-strengthening self-direction. Uncongenial forms of 
activity can not be imposed upon these inchoate groups, because 
such do not afford self-expression. But a sympathetic, analytic, 
penetrating leadership which can discover and contrive outlets and 
vehicles of expression for their latent aspirations and abilities can 
always control their conduct. 

The opportunity then which society possesses, and lias already 
begun to use, by reason of a vast equipment of school accommoda- 
tions which are not employed for their original purpose during the 
periods of popular leisure, may be summed up as follows: 



64 THE EXTENSION OF PUBLIC EDUCATION. 

1. Purveying beneficial amusements to those who are prevented 
by fatigue from engaging in active play and who otherwise might 
receive their satisfaction at the hands of unscrupulous vendors. 

2. Stimulating the growth of those groups which are capable of 
self-organization and government by furnishing them with meeting 
places. 

3. Promoting the formation and vigor of groups which might be 
incited to self-expression by furnishing both quarters and leadership. 

In these ways public education is extending its distinctive function 
of improving human society. That this work will undergo still 
greater and more systematic extension is clearly foreshadowed by 
the trend of present developments and the persistency of the forces 
behind them. 



APPENDIX. 



The data which have been presented in the foregoing study, with 
the exception of those given in Table 1, were all gathered through the 
cooperation of the school officials in various cities throughout the 
country. The vehicle used in gathering records of the evening 
occasions in individual schools was a 5 by 8 inch card, a copy of which 
is shown on the following pages. A supply of these cards was offered 
to the superintendents of schools in all of the cities of 5,000 population 
and over. As has been stated, cards were supplied to 234 cities, and 
filled-out cards were received from 110 of these. 

A copy of the circular letter inviting the superintendents of schools 
to participate in this study follows. 

DEPARTMENT OF THE INTERIOR 

BUREAU OF EDUCATION 

WASHINGTON 

January 16, 1914- 

Dear Sir: Desiring to obtain information in regard to the use of sehoolhouses and 
equipment for activities and interests other than those of the ordinary school work, 
for which they have been used almost alone in the past, and to promote their use for 
educative, social, civic, and recreative occasions, after class hours, the Bureau of 
Education has asked and obtained the ready cooperation of the Russell Sage Founda- 
tion in planning and carrying forward an investigation into the subject as outlined in 
the accompanying statement by Mr. Clarence Arthur Perry, assistant director, depart- 
ment of recreation, Russell Sage Foundation. 

For the convenience of those who will assist in collecting this information, Mr. 
Perry has, with the assistance of the Bureau of Education, devised the record card 
blank on page 3 of the statement. To each person applying at once to the Bureau of 
Education, there will be sent, free of charge, a sufficient number of copies of this 
record blank for a complete record of all after-school occasions during the months of 
February, March, and April — three cards for each of the school buildings under his 
or her charge. The blanks, when filled out, should be returned to the Bureau of 
Education for use in compiling the report on this subject. 

To give this report its highest value, it should include the complete record of such 
uses made of any schoolhouse during these three months in all cities of 5,000 popu- 
lation and over. 

If any of the school buildings under your care are used for other purposes than the 
ordinary day class work, will you not write at once for blanks, stating how many will 
be needed (three for each school building), and assist us in this investigation by 
making the record as indicated. 

I feel sure the publication of the results of this investigation will prove helpful in 
the promotion of a wider use of sehoolhouses. 
Yours, sincerely, 

P. P. Claxton, 

Commissioner. 

97381°— 15 5 65 



66 



APPENDIX. 



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03 *j 



BULLETIN OF THE BUREAU OF EDUCATION. 

[Note. — With the exceptions indicated, the documents named below will be sent free of charge upon 
application to the Commissioner of Education, Washington, D. C. Those marked with an asterisk (*) 
are no longer available for free distribution, but may lie had of the Superintendent of Documents, Govern- 
ment Printing Office, Washington, D. C, upon payment of the price stated. Remittances should be made 
in coin, currency, or money order. Stamps are not accepted. Numbers omitted are out of print.] 

1906. 

*No. 3. State school systems: Legislation and judicial decisions relating to public education, Oct. 1, 1904. 
to Oct. 1, 1906. Edward C. Elliott. 15 cts. 

1908. 

*No. 5. Education in Formosa. Julean H. Arnold. 10 cts. 

*No. 6. The apprenticeship system in its relation to industrial education. Carroll D. Wright. 15 cts. 

1909. 

*No. 1. Facilities for study and research in the offices of the United States Government in Washington 

Arthur T. Hadley. 10 cts. 
*No. 2. Admission of Chinese students to American colleges. John Fryer. 25 cts. 
*No. 3. Daily meals of school children. Caroline L. Hunt. 10 cts. 
No. 5. Statistics of public, society, and school libraries in 1908. 
*No. 6. Instruction in the fine and manual arts in the United States. A statistical monograph. Henry 

T. Bailey. 15 cts. 
No. 7. Index to the Reports of the Commissioner of Education, 1S67-1907. 
*No. 8. A teacher's professional library. Classified list of 100 titles. 5c1s. 
*No. 9. Bibliography of education for 1908-9. 10 cts. 
No. 10. Education for efficiency in railroad service. J. Shirley Eaton. 

*No. 11. Statistics of State universities and other institutions of higher education partially supported by 
the State, 1908-9. 5 cts. 

1910. 

*No. 1. The movement for reform in the teaching of religion in the public schools of Saxony. Arley B. 

Show. 5 cts. 
No. 2. State school systems: III. Legislation and judicial decisions relating to public education, Oct. 1, 

190S, to Oct. 1, 1909. Edward C. Elliott. . 
No. 5. American schoolhouses. Fletcher B. Dresslar. 75 cts. 

1911. 

*No. 1. Bibliography of science teaching. 5 cts. 

*No. 2. Opportunities for graduate study in agriculture in the United States. A. C. Monahan. 5 cts. 

*No. 3. Agencies for the improvement of teachers in service. William C. Ruediger. 15 cts. 

*No. -4. Report of the commission appointed to study the system of education in the public schools of 

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States. 5 cts. 
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*No. 13>. Mathematics in the elementary schools of the United States. 15 cts. 
*No. 14. Provision for exceptional children in the public schools. J. H. Van Sickle, Lightner Witmer, 

and Leonard P. Ayres. 10 cts. 
*No. 15. Educational system of China as recently reconstructed. Harry E. King. 10 cts. 
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the State, 1910-11. 

1912. 

*No. 1. A course ofstudy for the preparation of rural-school teachers. F. Mutchler and W.J.Craig. 5cts. 

*No. 3. Report of committee on uniform records and reports. 5 cts. 

*No. 4. Mathematics in technical secondary schools in the United States. 5 cts. 

*No. 5. A study of expenses of city school systems. Harlan Updegraff. 10 cts. 

*No. 6. Agricultural education in secondary schools. 10 cts. 

I 



II BULLETIN OF THE BUEEAU OF EDUCATION. 

*No. 7. Educational status of nursing. M. Adelaide Nutting. 10 cts. 
*No. 8. Peace day. Fannie Fern Andrews. 5 cts. [Later publication, 1913, No. 12.] 
*No. 9. Country schools for city boys. William S. Myers. 10 cts. 
*No. 13. Influences tending to improve the work of the teacher of mathematics. 5 cts. 
*No. 14. Report of the American commissioners of the international commission on the teaching of mathe- 
matics. 10 cts. 
*No. 17. The Montessori system of education. Anna T. Smith. 5 cts. 
*No. IS. Teaching language through agriculture and domestic science. M. A. Leiper. 5 cts. 
*No. 19. Professional distribution of college and university graduates. Bailey B. Burritt. 10 cts. 

No. 22. Public and private high schools. 

No. 23. Special collections in libraries in the United States. W. Dawson Johnston and Isadore G. Mudge. 

No. 27. History of public-school education in Arkansas. Stephen B. Weeks. 
*No. 28. Cultivating school grounds in Wake County, N. C. Zebulon Judd. 5 cts. 

No. 29. Bibliography of the teaching of mathematics, 1900-1912. D. E. Smith and Chas. Goldziher. 

No. 30. Latin-American universities and special schools. Edgar E. Brandon. 

1913. 

No. 1. Monthly record of current educational publications, January, 1913. 
*No. 2. Training courses for rural teachers. A. C. Monahan and R. H. Wright. 5 cts. 
*No. 3. The teaching of modern languages in the United States. Charles H. Handschin. 15 cts. 
*No. 4. Present standards of higher education in the United States. George E. MacLean. 20 cts. 
*No.6. Agricultural instruction in hi^h schools. C. H. Robison and F. B. Jenks. 10 cts. 
*No. 7. College entrance requirements. Clarence D. Kingsley. 15 cts. 
*No. 8. The status of rural education in the United States. A. C. Monahan. 15 cts. 
*No. 12. The promotion of peace. Fannie Fern Andrews. 10 cts. 

*No. 13. Standards and tests for measuring the efficiency of schools or systems of schools. 5 cents. 
*No. 16. Bibliography of medical inspection and health supervision. 15 cts. 

*No. 18. The fifteenth international congress on hygiene and demography. Fletcher B. Dresslar. 10 cts. 
*No. 19. German industrial education and its lessons for the United States. Holmes Beckwith. 15 cts. 
*No. 20. Illiteracy in the United States. 10 cts. 

*No. 22. Bibliography of industrial, vocational, and trade education. 10 cts. 
*No. 23. The Georgia Club at the State Normal School, Athens, Ga., for the study of rural sociology. E. C. 

Branson. 10 cts. 
*No. 24. A comparison of public education in Germany and in the United States. Georg Kerschensteiner. 

5 cts. 
*No. 25. Industrial education in Columbus, Ga. Roland B. Daniel. 5 cts. 
*No. 28. Expressions on education by American statesmen and publicists. 5 cts. 
*No. 29. Accredited secondary schools in the United States. Kendric C. Babcock. 10 cts. 
*No. 30. Education in the South. 10 cts. 
*No. 31. Special features in city school systems. 10 cts. 

No. 32. Educational survey of Montgomery County, Md. 
*No. 34. Pension systems in Great Britain. Raymond W. Sies. 10 cts. 
*No. 35. A list of books suited to a high-school library. 15 cts. 
*No. 36. Report on the work of the Bureau of Education for the natives of Alaska, 1911-12. 10 cts. 

No. 37. Monthly record of current educational publications, October, 1913. 
*No. 38. Economy of time in education. 10 cts. 

No. 39. Elementary industrial school of Cleveland, Ohio. W. N. Hailmann. 
*No. 40. The reorganized school playground. Henry S. Curtis. 10 cts. 

No. 41. The reorganization of secondary education. 

No. 42. An experimental rural school at Winthrop College. H. S. Browne. 
*No. 43. Agriculture and rural-life day; material for its observance. Eugene C. Brooks. 10 cts. 
*No. 44. Organized health work in schools. E. B. Hoag. 10 cts. 

No. 45. Monthly record of current educational publications, November, 1913. 
*No. 46. Educational directory, 1913. 15 cts. 

*No. 47. Teaching material in Government publications. F. K. Noyes. 10 cts. 
*No. 48. School hygiene. W. Carson Ryan, jr. 15 cts. 

No. 49. The Farragut School, a Tennessee country-life high school. A. C. Monahan and Adams Phillips. 

No. 50. The Fitchburg plan of cooperative industrial education. M. R. McCann. 
*No. 51. Education of the immigrant. 10 cts. 
*No. 52. Sanitary schoolhouses. Legal requirements in Indiana and Ohio. 5 cts. 

No. 53. Monthly record of current educational publications, December, 1913. 

No. 54. Consular reports on industrial education in Germany. 

No. 55. Legislation and judicial decisions relating to education, Oct. 1, 1909, to Oct. 1, 1912. James C. 
Boykin and William R. Hood. 

No. 58. Educational system of rural Denmark. Harold W. Foght. 

No. 59. Bibliography of education for 1910-11. 

No. 60. Statistics of State universities and other institutions of higher education partially supported by 
the State, 1912-13. 



BULLETIN OF TTIE BUEEAU OF EDUCATION. Ill 

1914. 

*No. 1. Monthly record of current educational publications, January, 1914. 5 ets. 

No. 2. Compulsory school attendance. 

No. 3. Monthly record of current educational publications, February, 1914. 

No. 4. The school and the start in life. Meyer Bloomiield. 

No. 5. The folk high schools of Denmark. L. L. Friend. 

No. 6. Kindergartens in the United States. 

No. 7. Monthly record of current educational publications, March, 1914. 
*No. 8. The Massachusetts home-project plan of vocational agricultural education. It. W. Stimson. 15cts. 

No. 9. Monthly record of current educational publications, April, 1914. 

No. 10. Physical growth and school progress. B. T. Baldwin. 25 cts. 
*No. 11. Monthly record of current educational publications, May, 1914. 5 els. 

No. 12. Rural schoolhouses and grounds. F. B. Dresslar. 

No. 13. Present status of drawing and art in the elementary and secondary schools of the United States. 
Royal B. Farnum. 

No. 14. Vocational guidance. 

No. 15. Monthly record of current educational publications. Index. 

No. 16. The tangible rewards of teaching. James C. Boykin and Roberta King. 

No. 17. Sanitary survey of the schools of Orange County, Ya. Roy K. Flannagan. 

No. IS. The public school system of Gary, Ind. William P. Burris. 

No. 19. University extension in the United States. Louis E. Reber. 

No. 20. The rural school and hookworm disease. J. A. Ferrell. 

No. 21. Monthly record of current educational publications, September, 1914. 

No. 22. The Danish folk high schools. H. W. Foght. 

No. 23. Some trade schools in Europe. Frank L. Glynn. 

No. 24. Danish elementary rural schools. H. W. Foght. 

No. 25. Important features in rural school improvement. W. T. Hodges. 

No. 26. Monthly report of current educational publications, October, 1914. 

No. 27. Agricultural teaching. 

No. 28. The Montessori method and the kindergarten. Elizabeth Harrison. 

No. 29. The kindergarten in benevolent institutions. 

No. 30. Consolidation of rural schools and transportation of pupils at public expense. A. C. Monahan. 

No. 31. Report on the work of the Bureau of Education for the natives of Alaska. 

No. 32. Bibliography of the relation of secondary schools to higher education. R. L. Walkley. 

No. 33. Music in the public schools. Will Earhart. 

No. 34. Library instruction in universities, colleges, and normal schools. Henry R. Evans. 

No. 35. The training of teachers in England, Scotland, and Germany. Charles H. Judd. 
*No. 36. Education for the home — Part I. General statement. B.R.Andrews. 10 cts. 
*No. 37. Education for the home — Part II. State action, schools, agencies. B. R. Andrews. 30 cts. 

No. 3S. Education for the home — Part III. Colleges and universities. Benjamin R. Andrews. 

No. 39. Education for the home— Part IV. Bibliography, list of schools. Benjamin R. Andrews. 

Mo. 40. Care of the health of boys in Girard College, Philadelphia, Pa. 

No. 41. Monthly record of current educational publications, November, 1914. 

No. 42. Monthly record of current educational publications, December, 1914. 

No. 43. Educational directory, 1914-15. 

No. 44. County-unit organization for the administration of rural schools. A. C. Monahan. 

No. 45. Curricula in mathematics. J. C. Brown. 

No. 46. School savings banks. Mrs. Sara L. Oberholtzer. 

No. 47. City training schools for teachers. Frank A. Manny. 

No. 48. The educational museum of the St. Louis public schools. C. G. Rathman. 

No. 49. Efficiency and preparation of rural-school teachers. H. W. Foght. 

No. 50. Statistics of State universities and State colleges. 

1915. 

No. 1. Cooking in the vocational school. Iris P. O'Leary. 
No. 2. Monthly record of current educational publications, January, 1915. 
No. 3. Monthly record of current educational publications, February, 1915. 
No. 4. The health of school children. W. H. Heck. 
No. 5. Organization of State departments of education. A. C. Monahan. 
No. 6. A study of colleges and high schools. 

No. 7. Accredited secondary schools in the United States. Samuel P. Capen. 
No. 8. Present status of the honor system in colleges and universities. Bird T. Baldwin. 
No. 9. Monthly record of current educational publications, March, 1915. 
No. 10. Monthly record of current educational publications, April, 1915. 

No. 11. A statistical study of the public school systems of the southern Appalachian Mountains. Nor- 
man Frost. 
No. 12. History of public school education in Alabama. Stephen B. AVeeks. 



IV BULLETIN OE THE BUREAU OF EDUCATION. 

No. 13. The schoolhouse as the polling place. E. J. Ward. 

No. 14. Monthly record of current educational publications, May, 1915. 

No. 15. Monthly record of current educational publications. Index, February, 1914— January, 1915. 

No. 16. Monthly record of current educational publications, June, 1915. 

No. 17. Civic education in elementary schools, as illustrated in Indianapolis. A. W. Dunn. 

No. 18. Legal education in Great Britain. H. S. Richards. 

No. 19. Statistics of agricultural, manual training, and industrial schools, 1913-14. 

No. 20. The rural school system of Minnesota. II. W. Foght. 

No. 21. Schoolhouse sanitation. William A. Cook. 

No. 22. State versus local control of elementary education. T. L. MacDowell. 

No. 23. The teaching of community civics. 

No. 24. Adjustment between kindergarten and first grade. Luella A. Palmer. 

No. 25. Public, society, and school libraries. 

No. 26. Secondary schools in the States of Central America, South America, and the West Indies. 

Anna T. Smith. 
No. 27. Opportunities for foreign students at colleges and universities in the United States. Samuel P. 

Capen. 

o 



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